The people suffer from famine because of the multitude of taxes consumed by their superiors. It is through this that they suffer famine.
The people are difficult to govern because of the (excessive) agency of their superiors (in governing them). It is through this that they are difficult to govern.
The people make light of dying because of the greatness of their labours in seeking for the means of living. It is this which makes them think light of dying. Thus it is that to leave the subject of living altogether out of view is better than to set a high value on it.
About the text, translation & sources
The Chinese text follows our sister site, Longhu Mountain. The English is James Legge’s public-domain translation, first published in 1891, transcribed from the Project Gutenberg edition. Paragraph numbering is omitted; wording, parenthetical explanations and period language are retained. Chinese readings vary between editions.
The Tao Te Ching is traditionally attributed to Laozi. Its date and authorship are debated. Chapter titles are reading aids; they are not part of the ancient Chinese chapter text. The reflection boxes on this site are contemporary editorial questions, distinct from the translation.